The End of Need Based Student Financial Aid in Canada?

Transcription

1 The End of Need Based Student Financial Aid in Canada? Prepared for: Canadian Association of Student Financial Aid Administrators (CASFAA) By Sean Junor and Alex Usher August 2007

2 About CASFAA The Canadian Association of Student Financial Aid Administrators (CASFAA) is a national professional association that represents financial aid administrators at Canada's universities, colleges and technical institutes. As a professional association, CASFAA serves as a liaison between our members and the federal government, service providers, financial institutions and various other stakeholders in student financial aid; advocates on behalf of members by providing input on student financial assistance programs and policies; and provides professional development opportunities for members, including our annual conference. About the Educational Policy Institute The Educational Policy Institute is a non profit research center focused in issues of educational opportunity, especially for our most needy populations. Based in Virginia Beach with offices in Toronto and Melbourne, EPI conducts program evaluation, policy analysis, and conducts professional development opportunities for educational professionals throughout the education continuum. Visit the EPI website at About the Authors SEAN JUNOR is the Manager of Knowledge Mobilization at the Educational Policy Institute. Prior to joining the Institute, he was the Senior Policy and Research Officer for the Canada Millennium Scholarship Foundation. He is a native of Saskatoon, Saskatchewan, and a graduate of the University of Saskatchewan. ALEX USHER is the Vice President of the Educational Policy Institute. Prior to joining the Institute, he was the Director of Research and Program Development for the Canada Millennium Scholarship Foundation, where he was in charge of Canada s largest ever research project on access to post secondary education. He is a native of Winnipeg, Manitoba, and graduate of McGill University and Carleton University. Suggested Citation: Junor, Sean, & Usher, Alex (2007). The End of Need Based Student Financial Aid in Canada? Toronto, ON: Educational Policy Institute. Educational Policy Institute 2

4 Data Limitations and Observations In order to keep monetary comparisons constant over time, this paper converts all figures in Chapter 2 into June 2005 real dollars. In each provincial summary, we begin by displaying a chart showing changes in student aid over time. These data show monies extended to students and do not represent government expenditures. While government expenditures and student take up is identical as far as grants, scholarships, and tax credits are concerned, they are not the same when it comes to loans (the author s estimate the cost of a dollar of loans to be about 33 cents). Any interested parties who wish to investigate or use data behind the tables and figures are encouraged to contact the Educational Policy Institute. Educational Policy Institute 4

5 Chapter 1: Introduction There was a major change in Canadian student aid in the late 1990s, due largely to a package of measures adopted by the Government Canada as part of its Canada Opportunities Strategy. At the time, what aroused the most comment was the creation in 1998 of the $2.5 billion Canada Millennium Scholarship Foundation (Foundation). But while the Foundation was certainly a welcome if controversial addition to the country s stock of need based aid, its creation did not herald the start of a new focus on need based aid. Quite the contrary, in fact: the creation of the Foundation was actually the last major investment in need based aid made by any Canadian government for nearly seven years. In retrospect, the most significant measure of the late 1990s was contained not the flashy 1998 federal budget, but rather in the almost unheralded budget of In that budget, the monthly education tax credit amount for full time students was increased from $60 per month to $80 per month. Though it hardly set the world on fire, this measure fundamentally altered the nature of student aid in Canada. The next year the monthly amount was increased in stages from $80 per month to $200 per month and part time students became eligible for a $60 per month credit. These amounts were later doubled in the federal Liberals pre election mini budget of October 2000, and then hiked again in 2006 when the new Conservative government created a $60 per month tax credit for textbooks (more will be discussed on this in Chapter 3) which was an addition to the existing monthly amount in all but name. Ancillary fees were added to the tuition fee tax credit. Student loan interest became subject to a tax credit as well. Provinces not to be outdone got into the tax credit act, too. Most matched the increases in federal tax credits some (notably Alberta) increased them way beyond anything the federal government did. Some have not provinces even began trying to use education tax credits as a way to stem the loss of their youth population. What all of this signaled was a decreased desire on the part of governments to use need based student assistance to distribute aid to those who need it the most. Instead, governments began finding non need based methods of providing supports: tax credits, tuition freezes anything which did not use need as a criterion became the preferred method of distributing money. Indeed, governments went so far as to begin actively seeking to distribute money to people who so far from being needy were actually well enough off to save substantial sums of money for their children s education. The Canada Education Savings Grant (CESG), begun in 1998, almost immediately became a $400 million per year program. Recently, provinces have begun copying this, too most notably, Québec, which has begun matching federal contributions to the program on a 1:2 basis. The metamorphosis from a need based system of aid to a predominantly non need based system of aid in Canada did not happen instantly. It has been the slow, inexorable result of an accretion of government decisions at both the federal and provincial levels. Ideology has not played a part governments of both the left and right alike have plunged with abandon into non need based projects. Educational Policy Institute 5

6 The purpose of this report is to shed light on the how this situation evolved, on a province byprovince basis 1. In Chapter 2, the paper takes data from to (the last year for which good data is available) to show how the mix of available aid changed in each province over that decade, and how these changes helped to offset the rises in tuition which occurred over that time. Though there are some broad themes which emerge from this examination, the situation was not the same in all provinces and the individual sections of this chapter should help the reader understand the nuances in situations across the country. Although good data on student assistance is not available past 2004, it is possible to track the broad outline of changes in student aid just by examining various budget documents and tracking government announcements dealing with student financial assistance. This paper does this in Chapter 3. In the final chapter, the paper examines the cumulative effect of these changes on student assistance and outlines who has benefited the most from the recent changes. 1 The authors have not intentional excluded Canada s three territories from the analysis in the paper, however, the availability of comparable and quality data does not allow for a full comparison using territorial data. Educational Policy Institute 6

7 Chapter 2: Student Aid in Canada to Introduction Chapter 2 deals with changes in the overall amounts of student aid being provided by federal and provincial governments in between the years and , the last year for which complete and accurate data is available. It shows the amount of federal and provincial aid provided by each province in each of these years. It also describes the effects of these changes on various measures of affordability. Overall, what the chapter shows is that there were very significant increases in student aid over this decade which, although they did not completely offset the increases in tuition which occurred over the course of the 1990s, did go some considerable distance to mitigating it. The data in this chapter are largely based on two EPI publications; The State of Student Aid in Canada (2007, forthcoming) and Beyond the Sticker Price (2006). Data on federal and provincial expenditures was directly collected in two surveys one conducted in 2003 and 2004 as part of the Price of Knowledge 2004 project and another in early 2005 as part of The State of Student Aid. Data shown in the various figures has been expressed in real 2005 dollars in order to account for inflation. In all figures, the portion indicated as net loans refers to the amount of loans issued minus the amount of remission paid out (to avoid double counting) in any given year. This should not be taken as reflective of actual government expenditures on loans; though the figure varies somewhat over time and across provinces, as a rule of thumb, a dollar in student loans costs a government roughly 33 cents in interest carrying charges, defaults, and interest relief costs. The data on individual affordability is presented as follows: For each province in each year, data is presented on the following four concepts: Average Tuition 2 and fees: Average tuition for undergraduate 3 students plus average ancillary fees as reported by Statistics Canada Tax Credits: Tax credits available to students studying full time for eight months paying the average tuition and fees listed above. Everybody s Net Tuition (ENT). Average tuition and fees minus tax credits: in effect, the tuition charge minus the non repayable tax credits which everyone receives. 2 Statistics Canada does not produce tuition and fee data nor does the agency disaggregate by polytechnic or university college. 3 Undergraduate tuition fee numbers are weighted averages calculated using the most current enrolment data available and the following faculties are included: Agriculture, Architecture, Arts, Commerce, Dentistry, Education, Engineering, Household Science, Law, Medicine, Music, and Science. Educational Policy Institute 7

8 Average Grants: The average size of grant in a particular jurisdiction in a particular year. Grant Recipients Net Tuition (GRNT): NET minus average grants. In effect, the net tuition paid by those people who receive grants. 2.2 Alberta Student Assistance Expenditures to 2004 Total student assistance available to students in Alberta rose by close to 80 percent over the decade to ; substantially more than the national average of 50 percent. At the start of the decade, annual expenditures were just over $400 million per year; by , expenditures were roughly $725 million. Over half of this increase was due to an increase in tax expenditures; most of the remainder is due to an increase in grants and loan remission. Together, this means all of the increase in assistance has been due to an increase in non repayable assistance; indeed, net loans now only cover about one third of total assistance in Alberta. In part, this increase was due to an increase in the number of post secondary students in the province: college and university enrolments rose by 20 to 25 percent during the decade in question. Still, real aid available to student grew substantially over the decade. Total aid available to students is shown below in Figure 1. Figure 1 Total Assistance by Type Alberta ($2005) $ Millions Tax Expenditures CESG Merit Net Loans Remission Grants As in the rest of the country, the decade ended with proportionately less assistance being given out by the provincial government than at the start. Although provincial aid increased by roughly $50 million, federal aid more than doubled, from $214 million to $478 million. As a result, nearly two thirds of all student aid dollars in Alberta (need based and universal combined) now come from the Government of Canada. Educational Policy Institute 8

10 The average grant size decreased by about $600 in the period, meaning that Grant recipients net tuition (GRNT) rose substantially after However, because of data collection limitations, GRNT is based on the average grant size, not the average amount of grant received (individuals can receive more than one grant). Since the number of grants increased substantially over the years in question (from 13,807 in to 34,954 in and 54,564 in ), it seems likely that not only are a larger people are receiving grants, but that more people are receiving multiple grants as well, meaning that true GRNT is probably decreasing, not increasing. In other words, combined federal and provincial expenditures have kept rises in net tuition to about 20 percent which given the increases in family income in Alberta over these years means they have stayed roughly constant in terms of affordability. The picture for grant recipients net tuition is a little less clear, but given the sharp increase in the number of grant recipients, it seems likely that overall, the affordability picture has improved substantially for a large number of students in the province. 2.3 British Columbia Student Assistance Expenditures to 2004 Total student assistance expenditures in British Columbia more than doubled over the decade to ; substantially more than the national average of 50 percent. At the start of the decade, annual expenditures were $430 million per year; by , expenditures were roughly $900 million per year. Over half of this increase was due to an increase in need based loans, and a substantial portion of the remainder came from need based grants. In significant contrast to most other provinces, less than 20 percent of the increase in assistance in British Columbia came from tax credits and only about a third came from universal sources of income. Much of the increase in student aid in British Columbia can be attributed to the province s spectacular growth in post secondary education participation (albeit from a very low base) during the decade in question. However, even with student numbers increasing by roughly 50 percent, the growth in student aid dollars was such that per student aid still increased substantially. Educational Policy Institute 10

11 Figure 4 Total Assistance by Type British Columbia ($2005) $ Millions Tax CESG Merit Loans Remission Grants As in most other provinces, the distribution of student assistance by source changes substantially during this decade. At the outset of the decade, roughly 45 percent of all aid in British Columbia came from the provincial government; by , this proportion had fallen to less than 32 percent, thanks to a 140 percent rise in federal loans, grants and tax credits combined. This is not to say provincial assistance declined; indeed, in absolute terms, provincial assistance increased substantially from $190 million per year to $288 million per year. But the huge increase in federal aid simply outstripped the growth in provincial aid. Educational Policy Institute 11

12 Figure 4 Total Assistance by Source British Columbia ($2005) $ Millions Government of British Columbia MSF Government of Canada Affordability Outcomes: Net Tuition in British Columbia over Time To date, this paper has been examining changes in government expenditure levels. But how have these changes affected individual students? In order to answer this, the paper needs to examine changes in tuition, tax credits and grants. This is done below in Table 2. Table 2 Changes in Tuition, Subsidies and Net Costs, British Columbia, to Tuition and Fees Tax Credits ENT Grants GRNT $3,433 $1,053 $2,381 $3,286 $ $3,419 $1,049 $2,370 $3,797 $1, $3,312 $1,014 $2,297 $3,626 $1, $3,273 $1,042 $2,231 $3,246 $1, $3,242 $1,129 $2,113 $3,086 $ $3,315 $1,081 $2,234 $3,317 $1, $3,136 $1,051 $2,085 $3,399 $1, $3,870 $1,429 $2,442 $2,890 $ $4,909 $1,584 $3,325 $2,807 $ $5,458 $1,716 $3, $5,349 $1,762 $3,587 Due to the provincial tuition freeze in the period , tuition, net tuition and GRNT remained more or less constant over those years. However, as noted earlier, GRNT only tells part of the story; equally important was the fact that the number of grants more than tripled over the same period, increasing from 14,878 in to 54,919 in As a result, in the period up to 2002, the situation remained constant for both non grant recipients and grant recipients, but the overall affordability position improved as more students received grants. Educational Policy Institute 12

13 This situation changed when the provincial government decided to lift the tuition fee freeze and allow fees to rise by roughly 60 percent, from $3,136 in to $5,458 in Although tax credits automatically rose to partially offset the increase, ENT still rose by over 80 percent in the three years after the tuition fee increase. As for grant recipients, their numbers remained constant but the average size of their grant actually declined. As a result, they went from paying substantially negative tuition to paying about $500 in net tuition. In sum, after enjoying a very good last half of the 1990s in which net costs actually declined, British Columbia students financial position deteriorated rapidly in the first half of this decade. 2.4 Manitoba Student Assistance Expenditures to 2004 Total student assistance expenditures in Manitoba rose by about 80 percent. This is substantially more than the national average of 50 percent, but less than that in some of the other western provinces. At the start of the decade, annual expenditures were $92 million per year; by , expenditures were roughly $166 million per year. None of this increase was due to a rise in net loans indeed, these declined over the decade. Most of the increase was due to an expansion in tax credits but a not insubstantial portion of the rise was due to the introduction of remission programs the province and the Canada Millennium Scholarship Foundation. Some of this rise in total assistance was due to changes in post secondary education student numbers, which rose by roughly 25 percent in the years after 1999; however, the growth in student aid still outstripped the growth in student numbers substantially, implying that perstudent aid rose substantially. Figure 5 Total Assistance by Type Manitoba ($2005) $ Millions Tax CESG Merit Net Loans Remission Grants MSRFAP Educational Policy Institute 13

14 As in most other provinces, the distribution of student assistance by source changed substantially during this decade. At the outset of the decade, roughly 25 percent of all aid in Manitoba came from the provincial government; by this had risen to over 40 percent. However, starting in (that is, after the Canada Opportunities Budget of 1998), the proportion coming from the provincial government began to fall quite significantly, so that by , this proportion had fallen back to 22 percent where it remains today. This change in proportion was not as it was in some provinces simply a matter of the growth in federal aid outstripping growth in provincial aid. In Manitoba, provincial aid actually declined, although a much larger proportion was now given out in grant rather than loan. Figure 6 Total Assistance by Source Manitoba ($2005) $ Millions Government of Manitoba MSF Government of Canada Affordability Outcomes: Net Tuition in Manitoba over Time To date, this paper has been examining changes in government expenditure levels. But how have these changes affected individual students? In order to answer this, this paper needs to examine changes in tuition, tax credits and grants. This is done below in Table 3. Educational Policy Institute 14

15 Table 3 Changes in Tuition, Subsidies and Net Costs, Manitoba, to ($2005 real dollars) Tuition and Fees Tax Credits ENT Grants GRNT $3,479 $1,064 $2,414 $2,956 $ $3,665 $1,112 $2,552 $2,991 $ $3,903 $1,174 $2,729 $4,145 $1, $4,133 $1,266 $2,867 $2,372 $ $4,510 $1,456 $3,054 $2,967 $ $4,003 $1,682 $2,322 $3,126 $ $3,965 $1,671 $2,293 $3,146 $ $3,918 $1,915 $2,004 $3,217 $1, $3,874 $1,903 $1,971 $2,710 $ $3,982 $1,932 $2, $4,031 $1,945 $2,086 In the period prior to the 1999 tuition freeze, net tuition increase for grant recipients and nongrant recipients alike grew by about $600. Subsequently, the 10 percent roll back and subsequent freeze, combined with generous increases in governmental education tax credits, saw a substantial overall decline in real costs. Indeed, ENT declined by almost $1,000 (nearly 33 percent) between Thus, students in paid less in real dollars than they did a decade earlier, and substantially less than they did in New Brunswick Student Assistance Expenditures to 2004 Total student assistance expenditures in New Brunswick increased by 84 percent in the decade to , substantially more than the national average increase of 50 percent. At the start of the decade, annual expenditures were $115 million per year; by , expenditures were roughly $219 million per year. Roughly half of this increase was due to an increase in needbased loans; most of the remainder was due to an increase in universal assistance, mainly tax benefits. Very little of this increase can be attributed to growing post secondary education student numbers. The total increase in college and university students over the decade in question was between ten and 15 percent; as a result, per student funding increased by well over 50 percent. Educational Policy Institute 15

16 Figure 7 Total Assistance by Type New Brunswick ($2005) $ Millions Tax CESG Net Loans Remission Grants Merit The distribution of student assistance by source fluctuated somewhat over the course of the decade. For the most part, the federal share of total aid stayed between 60 and 70 percent; however, in three anomalous years ( , and ), this share fell below 60 percent. This is not to say that provincial assistance fell; indeed, in absolute terms, it increased by nearly 75 percent, from $40 million to $69 million. However, this was only barely enough to keep up with the rapid increase in federal aid which was occurring throughout the decade. Figure 8 Total Assistance by Source New Brunswick ($2005) Government of New Brunswick MSF Government of Canada Educational Policy Institute 16

17 Affordability Outcomes: Net Tuition in New Brunswick over Time To date, the paper has been examining changes in government expenditure levels. But how have these changes affected individual students? In order to answer this, the paper needs to examine changes in tuition, tax credits and grants. This is done below in table 4. Table 4 Changes in Tuition, Subsidies and Net Costs, New Brunswick, to Tuition and Fees Tax Credits ENT Grants GRNT $3,369 $1,118 $2,251 $734 $1, $3,652 $1,197 $2,455 $904 $1, $3,833 $1,239 $2,593 $882 $1, $4,046 $1,326 $2,719 $958 $1, $4,092 $1,439 $2,653 $1,267 $1, $4,231 $1,652 $2,579 $1,823 $ $4,442 $1,706 $2,735 $1,655 $1, $4,735 $2,038 $2,697 $1,631 $1, $4,935 $2,089 $2,846 $2,108 $ $5,124 $2,138 $2, $5,323 $2,189 $3,134 New Brunswick is one of the very few provinces that did not implement some kind of tuition freeze over the past decade. As a result, tuition rose by $2,000 (or about 58 percent) in the decade to The growth in tax credits partially offset this increase, as the value of these credits increased by about $1,070 per student over the decade. As a result, ENT grew more slowly, by only about $900. Students who received grants, however, were in a different situation. The average grant size rose dramatically over the decade, notably when the Canada Millennium Scholarship Foundation bursaries were introduced in and when the province increased its own bursary program in The growth in grants more than offset any growth in net tuition as a result, students who receive grants in New Brunswick now pay substantially less than they did ten years ago. Moreover, there are substantially more grant recipients now than there were a decade ago. This means that affordability in the province has improved significantly among high need students over the course of the decade. Educational Policy Institute 17

18 2.6 Newfoundland and Labrador Student Assistance Expenditures to 2004 Total student assistance expenditures in Newfoundland and Labrador in were $154 million, some 60 percent more than they had been a decade earlier. This is roughly similar to the national average of a 50 percent increase over the course of the decade. Yet assistance had been much higher five years earlier in , total student aid spending had been $217 million, or more than of the other western provinces. Nearly all of the increase in assistance up to came in the form of loans. After that, loans declined precipitously, but this was partially offset by a significant rise in tuition tax credits. This growth in student aid has occurred in a context where post secondary education student numbers were falling more or less in line with the decline in the provincial youth population throughout the late 1990s. Enrolments then bounced back again around the turn of the millennium and as a result, the total enrolment increase over the decade was about ten percent. This implies that per student aid was up roughly 40 percent over the course of the decade. Figure 9 Total Assistance by Type Newfoundland & Labrador ($2005) $ Millions CESG Tax Merit Net Loans Remission Grants At the start of the decade in question, roughly 30 percent of all student assistance in Newfoundland and Labrador came from the provincial government. This rose to roughly 40 percent by Then, as federal government expenditures increased following the 1998 budget and provincial loan payments declined as private vocational colleges were removed from the student aid rolls, the province s share of total assistance has since declined again to about 30 percent. Educational Policy Institute 18

19 Figure 10 Total Assistance by Source Newfoundland & Labrador ($2005) $ Millions Government of New foundland MSF Government of Canada Affordability Outcomes: Net Tuition in Newfoundland and Labrador over Time To date, this paper has been examining changes in government expenditure levels. But how have these changes affected individual students? In order to answer this, the paper needs to examine changes in tuition, tax credits and grants. This is done below in Table 5. Table 5 Changes in Tuition, Subsidies and Net Costs, Newfoundland and Labrador, to Tuition and Fees Tax Credits ENT Grants GRNT $3,101 $1,075 $2,026 $1,410 $ $3,530 $1,244 $2,286 $2,918 $ $4,085 $1,518 $2,567 $2,531 $ $4,215 $1,671 $2,544 $2,032 $ $4,324 $1,702 $2,622 $2,372 $ $4,623 $1,910 $2,714 $2,827 $ $4,134 $1,780 $2,355 $2,891 $ $3,413 $1,588 $1,825 $3,027 $1, $3,216 $1,536 $1,680 $2,571 $ $3,164 $1,522 $1, $3,070 $1,497 $1,573 Tuition and fees rose in Newfoundland and Labrador over the latter half of the 1990s. However, the provincial government s decision to roll back tuition and then freeze it reduced costs in real dollars by a third from to (and beyond). The value of tax credits fell during this Educational Policy Institute 19

20 period (a natural result of the tuition reduction since credits are based in part on paid fees), but ENT still fell by $1,200, or just over 40 percent. Fluctuations in average grants meant that GRNT fell too. All students therefore benefited from more affordable education costs. 2.7 Nova Scotia Student Assistance Expenditures to 2004 Over the decade from to , assistance to Nova Scotia students rose by just over 50 percent that is, roughly equal to the national average from $143 million per year to $233 million per year. The rise was caused by a number of things growth in net loans, growth in remission programs, growth in tax credits, growth in CESGs and growth in grants. Indeed, Nova Scotia is unusual in having growth across all financial instruments. Proportionately, though, it was tax credits that rose the fastest of all instruments and accounted for approximately half the rise in total assistance. Not all of this growth translated into increased amounts of dollars per student. Overall college and university enrolment in Nova Scotia rose by 20 percent, meaning that per student aid actually only increased by about 25 percent. Figure 11 Total Assistance by Type Nova Scotia ($2005) $ Millions Tax CESG Merit Net Loans Remission Grants In terms of the source of assistance, at the start of the decade in question, the government of Nova Scotia was responsible for over 45 percent of total assistance distributed in the province. This proportion remained more or less constant until 1998, when two things happened. First, federal expenditures began to rise as a result of the 1998 budget, and second, half the provincial Educational Policy Institute 20

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Analytical Bulletin Certified and Non-Certified Specialists: Understanding the Numbers CIHI Physician Databases 2004:2 Introduction Physician count information is available from a number of Canadian data

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A Note on Business Tax Competitiveness in British Columbia Volume 21, Issue 2, May 2014 It s slightly more than one year since BC scrapped the Harmonized Sales Tax (HST) and returned to the former Provincial

Internet Connectivity Among Aboriginal Communities in Canada Since its inception the Internet has been the fastest growing and most convenient means to access timely information on just about everything.

on the CANADA STUDENT LOANS PROGRAM To obtain a copy of this report, please contact: Office of the Chief Actuary Office of the Superintendent of Financial Institutions Canada 16 th Floor, Kent Square Building

Youth volunteering on the rise Frank Jones In contrast to other age groups, more Canadians aged 15 to 24 are becoming volunteers. The volunteer participation rate of most of the population changed little

Health Care Coverage and Costs in Retirement Health care coverage and costs should be an important consideration in your retirement planning. You need to have an idea of what coverage you will need and

CONGRESS OF THE UNITED STATES CONGRESSIONAL BUDGET OFFICE Percent 70 The Distribution of Household Income and Federal Taxes, 2008 and 2009 60 50 Before-Tax Income Federal Taxes Top 1 Percent 40 30 20 81st

IMDB 2008 Research Series Economic Class For internal use only IMDB 2008 Immigration Category Profiles Business Immigrants Entrepreneurs Findings from the Longitudinal Immigration Database (IMDB) March

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College of Nurses of Ontario Membership Statistics Highlights 2014 Revised February 25, 2015 VISION Leading in regulatory excellence MISSION Regulating nursing in the public interest Membership Statistics

Policy Snapshot: State Student Grant Aid in New England Although they constitute only about 12% of state funding for higher education, the dollars spent on grant aid to students have the potential to make